Approaches/Peace process review: January 1992

APPROACHES TOWARDS

THE SETTLEMENT

OF THE ARAB-ISRAELI CONFLICT

AND THE QUESTION OF PALESTINE

Issue 10  –  January 1992

United Nations

New York, February 1992

– ii –

INTRODUCTION

In April 1991, the Committee on the Exercise of the Inalienable Rights of the Palestinian People requested that the Division for Palestinian Rights of the United Nations Secretariat prepare urgently and update regularly, for the use of the Committee members and observers, a compilation of relevant recent statements, declarations and proposals regarding the settlement of the Arab-Israeli conflict, including the question of Palestine and the convening of the International Peace Conference on the Middle East.  The first issue of the publication, prepared in response to the decision of the Committee, appeared the same month.

Note should be made that reproduced herein are only those parts of the statements, declarations, proposals and initiatives, quoted or summarized, which relate to the Arab-Israeli conflict and the question of Palestine.

Remarks by the Minister of Construction and Housing of Israel

concerning settlements in the occupied Palestinian territory,

Tel Aviv, 9 January 1992

On 9 January 1992, in an interview on the Educational Television Network, in Tel Aviv, Israeli Minister of Construction and Housing Mr. Ariel Sharon made the following remarks as regards the pace of the Jewish settlement activities in the occupied Palestinian territory:

"…

"… First of all, the Israeli Government's position is that Jews may live throughout Eretz Yisrael.  There is a lot of construction going on throughout the country.  In the last 15 months we built almost 112,000 apartments, repaired 20,000 apartments, and settled over 9,000 families in mobile homes and trailers.  Construction is proceeding at a very high pace throughout the country and, of course, in Judea and Samaria as well.

"…

"… In my opinion, settlement is a catalyst of peace.  I would say that the vigorous settlement activity and construction throughout the country is a catalyst of peace and a barrier against war.  Two things have brought the Arabs to the negotiating table: first, the pounding of the cement mixers building the houses in Judea and Samaria; second, their memories of the cannons blasting the terrorist bases in Beirut during the Lebanon war."1/

Text of the memorandum submitted by a delegation of Palestinians from the occupied territory to the Foreign Minister of France Roland Dumas,

Jerusalem, 9 January 1992

On 9 January 1992, at Jerusalem, a delegation of Palestinians from the occupied territory met with the Foreign Minister of France, Roland Dumas and submitted to him the following memorandum:

"Your visit comes at a time when the Palestinian people are intensifying their struggle for a just, comprehensive and durable peace and at a time the Israeli Government is escalating its repressive measures in the occupied Palestinian territories.  The Israeli Government is continuing to introduce obstacles in the road of the peace process, the latest obstacle being the Israeli decision to allocate 25 per cent of the Housing Ministry budget to build 8,000 housing  units in existing settlements in the occupied territories and the foundation of settler guards and the decision to expel 12 Palestinians from the occupied territories.

"The passing of Security Council resolution 726 of January [7,] 1992 was made possible by your contribution.  We hope that the French effort will continue in transferring international resolutions into practical and effective resolutions.  Especially since the Israeli Government has always rejected all Security Council resolutions relating to human rights and the Fourth Geneva Convention of 1949.

"France played and continues to play a special role in the formation of the new world order.  It has always contributed to the promotion of international peace and security.  It was partially due to its balanced and realistic position towards the Arab-Israeli conflict in general and the Palestinian question in particular, that the peace process started.  We believe that the collapse of the Soviet Union necessitates a major European role in support of the process.  We believe that the Government of France can play a major role in this direction in order to ensure the continuation and success of the peace process.

"Peace in the Middle East constitutes a cornerstone for international peace and security due to factors of geopolitics and nations' interests.  In this respect, it is essential for the Europeans to play a major role in the peace process.

"To ensure this role, we suggest the following to the Government of France:

"1. To increase cooperation and coordination in all fields with our sole legitimate representative of the Palestinian people, the PLO, noting that this cooperation includes the Palestinian people from the occupied territories and in exile.

"2. We urge France to start an international campaign for the implementation of the Fourth Geneva Convention of 1949 as far as the occupied territories, including East Jerusalem, is concerned with the aim of affording international protection in the occupied territories until a just settlement for the conflict is reached.

"3. We urge the French Government to convince Europe to not provide Israel with financial loan guarantees, especially after the Israeli Government stated that its settlement plans depend on such loans.  Also to link various cooperation and loans with Israel to Israel's compliance with international law.

"4. Concerning settlements, we urge France in its capacity as a permanent member of the Security Council and as a leading member of the European Economic Community, to help the Palestinians in monitoring Israeli settlement activity in the occupied territories by providing European satellite picture of the settlements.

"5. We suggest to the French Government the establishment of a joint French-Palestinian committee for economic cooperation with the specialized committees and the concerned in the occupied territories based on France's similar experience with other countries.

"6. Due to our increasing need in many qualified fields, we request that the Government of France provide scholarships to train Palestinians in the field of agriculture, water, industry, commerce and administration.

"We reiterate our commitment to the continuation of the peace process and urge France to move effectively to secure a full European role in the peace process based on international legitimacy and the various EEC summit resolutions which have recognized Palestinian national rights and above all the right of self-determination and the right to an independent Palestinian State."2/

Text of draft "Outline of Model of the Palestinian

Interim Self-government Authority (PISGA)",

Washington, D.C., 14 January 1992

On 14 January 1992, the joint Jordanian-Palestinian delegation at the Washington, D.C. round of the Middle East peace negotiations presented the following document to the Israeli delegation:

"DRAFT

THE JOINT JORDANIAN-PALESTINIAN DELEGATION

THE PALESTINIAN-ISRAELI TRACK

"Outline of Model of the Palestinian Interim

Self-government Authority (PISGA)

"Introduction

"The Palestinian side believes that this outline of a model for the Palestinian Interim Self-government Authority could be the basis for negotiations during this phase, after the necessary preparatory steps referred to in our agenda have been taken, including the total cessation of all settlement activities.  What is presented here reflects both the letter and spirit of the terms of reference upon which these negotiations have been convened, and universally accepted democratic principles.

"The purpose of the interim self-government arrangements is to ensure the peaceful and orderly transfer of authority from Israel to PISGA, and to create the proper conditions for sustainable negotiations on the final status of the occupied Palestinian territory.

"1. The Main Characteristics of the PISGA

"One:  These arrangements are interim  ones, which will culminate  in  the establishment of the PISGA.  They shall remain in force until the conclusion of the final status agreement which is to be negotiated.

"Two:  It covers all the Palestinian territories occupied since June 1967. The jurisdiction of the PISGA shall encompass all these territories, the land, natural resources and water, the subsoil, and their territorial sea and airspace.  Its jurisdiction shall also extend to all the Palestinian inhabitants of these territories.

"Three: The de jure applicability  of the Fourth Geneva Convention of 1949 and the Hague Regulations of 1907, as well as all relevant UN resolutions, in particular 242 and 338, should be recognized and strictly observed by Israel and the PISGA.

"Four:  It is an entity whose authority emanates from the fact that it was elected by the Palestinian people.  No outside source invests it with its authority.

"Five:  It is the authority to which shall be transferred all the  powers, responsibilities and jurisdiction which are exercised by any Israeli military or civilian authority, or any agency acting for or on behalf of the Israeli Government.

"Six:  The PISGA shall have legislative, executive and judicial powers.

"2. The Structure of the PISGA

The PISGA shall have the following three main organs:

"a) A Legislative Assembly composed of 180 freely elected representatives from the occupied Palestinian territory;

"b) An Executive Council composed of 20 members, who will be  nominated by the Chairperson of the Executive Council and subsequently  confirmed  by the Assembly.  The Chairperson shall be elected by the Assembly.

"c) The Judiciary shall be  composed  of  courts  of  law  enjoying  full guarantees of independence.

"3. Steps to be followed in establishing the PISGA

"a) Elections for the Legislative Assembly, in  which  Palestinians  from the West Bank, including Jerusalem, and Gaza, as well as persons displaced since 1967 and deportees should participate fully.  Political detainees must also be freed and allowed to participate.  These elections are to be supervised by an international body.  All existing orders, regulations or laws which prohibit and/or restrict assembly, movement, participation in political activities or campaigning for elections shall be rescinded to enable these elections to proceed in an orderly and democratic manner.

"b) Transfer  of  jurisdiction,  powers and  responsibilities  which  are exercised by any Israeli military or civilian authority, or any agency acting for or on behalf of the Israeli Government, to the PISGA, and the simultaneous withdrawal of the Israeli Military Government and its civilian administration.

"c) The Israeli armed forces shall  withdraw  from  all  populated  areas immediately before the PISGA election process is initiated.  They shall complete their withdrawal in mutually agreed phases to redeployment points along the borders of the occupied Palestinian territories by the time PISGA is inaugurated.

"4. Security

"Arrangements shall be implemented to assure internal and external security and public order during the transitional period with the assistance of United Nations peace-keeping forces.  A strong local Palestinian law enforcement force shall be established and controlled by the PISGA in order to ensure security and public order.  Arrangements for external security shall be agreed in the course of these interim negotiations."

"Washington, D.C., January 14, 1992."3/

Remarks by the Spokesman for the Secretary-General of the

United Nations on the question of the Middle East peace process,

United Nations Headquarters, 20 January 1992

On 20 January 1992, at a daily press briefing, held by the Department of Public Information at United Nations Headquarters, the Spokesman for the Secretary-General of the United Nations said that he had been authorized to state the following regarding the role of the United Nations in the Middle East peace process:

"The United Nations has always played a useful role in the search for a solution to the Middle East crisis.  The United Nations will continue to play such a role and would be happy to participate in the forthcoming multilateral meeting of the Middle East Peace Conference, scheduled to be held in Moscow, provided it is invited to attend as a full-fledged participants."4/

Remarks by Prime Minister Itzhak Shamir regarding the future of the

occupied West Bank and the Gaza Strip, 20 January 1992

On 20 January 1992, speaking before Jewish settlers in the West Bank settlement of Betar Illit, south-west of Jerusalem, the Prime Minister of Israel Itzhak Shamir said, inter alia, the following on the question of settlements in the occupied West Bank and the Gaza Strip:

"We see the construction in all of Judea, Samaria and Gaza," he said, using biblical terms for the West Bank, "and this construction will continue, and no force in the world will stop this construction….  We say to ourselves, and to the Gentiles of the world and to the next generations, here will be our homeland, here will be our home, forever and ever."5/

Director-General of the Foreign Ministry of Israel on the

United Nations participation in the Middle East peace negotiations,

Tel Aviv, 22 January 1992

On 22 January 1992, during a press briefing held at Tel Aviv, Mr. Yosef Hadas, Director-General of the Foreign Ministry of Israel said the following, inter alia, regarding the participation of the United Nations in the multilateral negotiations on the Middle East to be held in Moscow:

"…

"All the invitations to the Moscow multilateral talks were based on the invitations to the Madrid conference, where the United Nations had observer status.  We are not going to a UN conference.  We are not going to an international conference.  We have to be careful and stress that this is a regional conference for the promotion of peace between us and our neighbours."6/

Organizational Meeting for Multilateral Negotiations on the Middle East,

Moscow, 28-29 January 1992

The Organizational Meeting for Multilateral Negotiations on the Middle East, Co-Chaired by the Russian Federation and the United States of America, was held in Moscow, on 28-29 January 1992.  The following delegations took part in the deliberations of the first day of the meeting at the foreign-minister level:  Bahrain, Canada, Egypt, European Community (EC), European Free Trade Association, Israel, Italy, Japan, Jordan, Kuwait, Oman, Qatar, Saudi Arabia, Tunisia, Turkey, and the United Arab Emirates.  The delegation of China was headed by the Deputy Minister for Foreign Affairs.  The delegations of Mauritania and Morocco were headed by their ambassadors to Moscow.  Also participating in the plenary meeting were representatives of Azerbaijan, Kyrgyzstan and Ukraine.

On 29 January 1992, the multilateral deliberations continued in five working  groups established to consider the following regional issues: arms control and regional security (chaired by the Russian Federation), economic development (EC), water resources (United States), environment (Japan), and refugees (Canada).  An ad hoc steering group, Co-Chaired by the Russian Federation and the United States, was also formed.

Plenary meeting, 28 January

On 28 January 1992, the Co-Chairmen addressed the meeting during the morning session.

Opening statement by the Minister for Foreign Affairs

of the Russian Federation, Andrei V. Kozyrev

"Esteemed Mr. Co-Chairman, Distinguished Ladies and Gentlemen,

"I am happy to welcome the participants of the Moscow Organizational Meeting for Multilateral Negotiations on the Middle East.  Let me convey to you the best regards and wishes for successful and fruitful work from President B. N. Yeltsin of the Russian Federation.

"Moscow is taking the relay from Madrid and Washington.  And this is a reflection of our intention to play a constructive role in international affairs.

"The policy of Russia is turning to internal affairs.  We do not intend to compete with anyone either for ideological influence or for the spheres of military and strategic domination.  We do not have any imperial ambitions.  But one other thing is also true – Russia does not and will not decline its international responsibility as a great Power and as a permanent member of the UN Security Council.  It is even more evident when one has in mind the Middle East region which is, indeed, geographically close to us.

"We have agreed to host the Meeting in Moscow because we care for peace in the Middle East.  We have no other goals there just as we do not have them anywhere else in the world.  We stand for peace in the Middle East because its peoples have literally earned it in suffering.  However, we have our direct interest there too.  This only interest is of an economic nature and represents a wish to have normal conditions for equal and mutually beneficial economic relations with all the countries in the region.  We are convinced that this is in the interest of all civilized States because there can be no free international cooperation without peace and stability.

"Just like in all other instances, in our approach to the countries of the Middle East we do not divide them into 'friends' and 'enemies', into 'our clients' and 'clients of others'.  All the participants in the Arab-Israeli conflict are equal to us, and we want them to find by themselves a formula of peace, of equal and mutually advantageous coexistence.  It goes without saying that we on our part are ready to help them and will intensify our efforts to that effect.

"As Co-Chairmen – together with the United States – of the peaceful negotiation process we consider it our main task to act as an honest intermediary.  We have no preferences in respect to anyone, our task is to bring the parties together and to help them to come to an agreement by themselves.  The most important thing is to continue the process of negotiations and the logic of the process will then enable the parties to the conflict to find mutually acceptable solutions.

"The Russian side highly appreciates the institution of Co-Chairmanship. This is a kind of a joint trusteeship – together with the United States -with respect to the settlement of the Middle East conflict.  By now, particularly favourable conditions emerged for this kind of a joint effort. Russia has flatly given up all ideological rivalry with the United States. The democratic Russia – which has been spoken of so warmly by Mr. James Baker – and I am grateful to him for that – does not consider the USA to be its enemy, even a potential one.  On the contrary, we want to move quickly from partnership to friendly relations with the USA and its allies.  This question will be dwelt upon at the upcoming meetings of President Boris Yeltsin with the leaders of Great Britain, USA and Canada.

"The same aspiration for peace, stability and full-fledged mutually advantageous economic cooperation on that basis characterizes the approach of the new democratic Russia to all the States of the world.  It is with these intentions in mind that the President of Russia is going to New York to take part in a summit meeting of the UN Security Council where he is planning to come up with a number of initiatives.

"It is encouraging that our Meeting today is attended by the representatives of almost all Middle Eastern States and many other countries.  We note with satisfaction an interested participation of European countries represented here by Portugal (from the European Community) and Iceland (from the European Free Trade Association) as well as Japan, Canada and Turkey.

"Unfortunately, Syria and Lebanon could not find it possible to send their representatives to the Moscow Meeting.  We took every effort in order to be able to welcome in this hall not just the Jordanian delegation but the joint Jordanian/Palestinian one.  It would have been useful if this intermediate forum could bring together all the parties directly concerned. But in any case nothing prevents them from joining our effort at any time.

"I would like to outline the principal elements of our vision of the multilateral negotiations.

"First of all, joint efforts of the regional States themselves are needed.  These States bear primary responsibility for the future of the Middle East, and therefore bilateral and multilateral efforts should complement and enrich each other.

"These efforts should be strengthened by international assistance in establishing a new climate in the Middle East region.  It is dictated by the nature of the regional problems, affecting interests of many States.

"To settle bilateral disputes alone between Arabs and Israelis – as cardinal as this task might be – would be insufficient for a sustainable peace in the Middle East.  It is vital to resolve a number of major problems, which cannot be achieved without international participation.  The convocation of the Moscow Meeting reflects a recognition of this reality.

"One of the perceived main objectives of the future multilateral negotiations is to move the balance of force towards a progressively lower level of armaments – to a defence sufficiency.  That, in our view, will require:

"- collective arrangements with the participation of the buyers and major suppliers of weapons, above all offensive weapons, on the controlled reduction of their flow to the Middle East;

"- measures to regulate domestic military production in the Middle Eastern States;

"- establishing a reliable international control and building confidence by ensuring openness, transparency and predictability in the military field.

"In the course of concrete discussions it will be useful to rely on the existing experience of solving such problems in Europe, as well as on the provisions formulated by the UN Security Council for crisis management in the Gulf area.

"There exist objective prerequisites for Israel and the Arab States to move progressively towards economic partnership.

"It is an important task to achieve a solution to the water resources issues in the Middle East and to find practical arrangements concerning effective cooperative utilization of the water resources drawing on advanced international expertise.

"Another issue that needs to be mentioned here is the necessity to find an honourable solution to the burning problem of the refugees, who had to abandon their homes, wandering from one place to another, far from their homeland, all because of the Arab-Israeli conflict and its repercussions.

"Obviously, this is not an exhaustive list of all the problems that have accumulated in the relations between the countries and peoples of the Middle East.  The Russian diplomacy is realistic in assessing the complexity of the challenges facing the participants in the multilateral negotiations.  There is the extremely burdensome heritage of the decades of hostility and suspicion that has to be overcome before negotiated mutually acceptable agreements can be achieved.  This will demand a meticulous and delicate, truly diplomatic effort, that will take a lot of time.  But this is a realistic way with no promising alternative.

"The Moscow round, in essence, is an organizational meeting.  It seems, however, that there is a common feeling among all those present – a feeling that by its political connotation our forum outgrows its purely organizational framework.  Today, the peace process in the Middle East is entering a new stage.  I am convinced that we are in a position to make the forthcoming two days of work an important development bringing the peoples of the Middle East closer to peaceful future."7/

Remarks by the United States Secretary of State, James A. Baker

"Foreign Minister Kozyrev, Distinguished Delegates:

"Less than three months ago, history was made in Madrid.  There, in an unprecedented gathering, Israel and its neighbours sat directly across the table from one another.  Immediately after, bilateral negotiations began: between Israel and Lebanon, Israel and Syria and a joint Jordanian-Palestinian delegation.

"We have now witnessed three rounds of bilateral negotiations in as many months.  In every case, the parties are engaging on substantive issues.  And even when the parties are seemingly bogged down in procedural wrangles, they are for the most part the ones who are sorting them out, resolving their problems in face-to-face negotiations.

"I do not mean to suggest we are satisfied with all that has transpired or naive about the hurdles and challenges that lie ahead.  As I said in Madrid, we must crawl before can walk and we must walk before we can run. We are not running, and there are those who would say that we are not even walking.  But we are moving, and that is key, for all the potentially good ideas and formulas for peace count for little in the absence of an agreed upon process to engage them.  And such a process of direct engagement — a process designed to lead to comprehensive peace on the basis of United Nations Security Council resolutions 242 and 338 — is now well under way.

"We meet here today in newly independent and newly democratic Russia. I find it hard to imagine any setting being more fitting.  As recently as a few years ago, few would have even dared to dream that Russia would be going through the profound transformation we are not witnessing.  This should tell us something; simply put, where there is vision and where there is courage, there is also possibility and promise.

"We have gathered to explore new possibilities for the Middle East.  As you all know, the invitation to the Madrid conference stated that those parties who wished to attend multilateral negotiations would convene two weeks after the opening of the conference to organize those negotiations. Well, I am afraid we are a bit late.  But it is my hope — and it should be our determination — that what we are embarking upon today will prove to have been well worth waiting for.

"What is it that we are here to begin?  We are here to organize ourselves in preparation for a process that with time will address issues common to all the peoples of the Middle East.  Despite the political issues that currently divide Governments and peoples, there are real ties that bind the peoples of the Middle East together.  They breathe the same air, drink the same water, are vulnerable to the same diseases, and have all suffered from the very tragic costs of war.

"It is for these reasons that we have come together — to address those issues that are common to the region and that do not necessarily respect national or geographic boundaries.  These issues can best be addressed by the concerted efforts of regional parties together with the support of the international community and the resources and expertise that it can provide.

"Let me take this opportunity to make something clear.  What we are embarking upon here in Moscow is in no way a substitute for what we are trying to promote in the bilateral negotiations.  Only the bilateral  talks can address and one day resolve the basic issues of territory, security and peace which the parties have identified as the core elements of a lasting and comprehensive peace between Israel and its neighbours.

"But it is also true that these bilateral negotiations do not take place in a vacuum, and that the conditions of the region at large will affect them. In short, the multilateral talks are intended as a complement to the bilateral negotiations; each can and will buttress the other.

"This is true for three reasons.  First, multilateral negotiations on regional issues will send a powerful signal that all parties are unequivocally committed to peace and reconciliation.

"Second, multilateral negotiations on regional issues will address on their own merits a range of regional problems crying out for resolution. There are pressing human problems — poverty, refugees, disease, and above all, the danger of war — that need to be addressed.  It would be tragic and irresponsible to put these problems of real and profound human need on hold while waiting for peace to come.

"Third, multilateral negotiations on regional issues can begin to improve the lives of people and create a basis for greater stability in the area. As progress is made, as tangible benefits emerge, a vision of what real peace might mean will also begin to emerge.

"Today, we will be hearing statements by delegations from the region and from others outside the region.  I would hope that everyone would take advantage of this opportunity to discuss how we can best approach the challenges common to all who live or have a stake in the well-being of the Middle East.

"Tomorrow, we move from the conference hall to working groups where the important task of organizing the discreet groups and determining how they will proceed will begin.  The regional parties will have the primary responsibility for setting the agendas.  The co-sponsors, along with the international community, are prepared to play an active supporting role.  I would like say just a few words about each of the five groups.

"First, economic development.  For too long, the substantial human, natural, and financial resources of the Middle East have not been utilized to their full potential.  Military spending has crowded out development; intra-regional trade and investment has remained small; and external assistance flows have cultivated dependency more than growth.

"An economic development working group could begin to consider how this picture could be turned around by: (1) focusing the attention of interested parties on the urgent economic needs of the West Bank and Gaza; (2) assessing and considering job-creating regional infrastructure projects in energy, communications and transportation; (3) by looking into the development of trade as an engine of economic growth  and  job  creation; (4) exploring the potential for expanding tourism in a climate of peace.  We urge regional parties to be creative as they shape an appropriate work plan for this group.

"Second, the environment.  From groundwater contamination to oil spills, Middle Eastern countries face daunting environmental challenges which are mounting daily under the twin pressures of population growth and industrialization.

"Initially, an environment working group could be the catalyst for the exchange of scientific findings on the extent of shared environmental problems.  The Gulf of Aqaba might be a good place to start.

"Over time, the group could expand to explore parallel or joint projects on the region's common problems ranging from preservation of archeological sites to waste disposal.  Again, the agenda could be as expansive as the regional parties define.

"Third, water.  Assuring reliable supplies of this precious resource is a fundamental security — as well as economic — challenge to all the regional parties, especially in the arid, drought-prone conditions of the Middle East.

"A water working group could begin to explore the dimensions of this challenge, beginning with seminars to exchange forecasts of demand and available supply and leading over time to cooperative activities in the areas of water pricing and allocation policies, desalination techniques, and re-use of brackish water.  Interested extra-regional parties could share expertise, technologies and resources.

"Fourth, is the issue of refugees.  Almost all of the conflicts that punctuate the history of the Middle East have been the occasion of a substantial number of individuals leaving their homes.  Often, they have had to live for months or years in temporary, crowded camps.  This experience is common to all too many of the region's peoples.  It is not our objective to ascribe cause or attribute responsibility for the refugee problem.  Rather, it is to see whether the parties of this region, helped by States from outside, can provide needed resources to improve the lot of these men, women and children.

"Finally, arms control and regional security.  The Gulf war was a vivid reminder of just how destructive patterns of arms acquisition and production have and can become — undermining the very security they were intended to promote.  An arms control working group could begin to tackle this issue, but in a way that recognizes the vital security interests at stake for all the parties of the region.

"In the first instance, we envision offering the regional parties our thinking about potential approaches to arms control, drawing upon a vast reservoir of experience stemming from attempts to regulate military competition in Europe and other regions.  From this base, the group might move forward to considering a set of modest confidence-building or transparency measures covering notifications of selected military-related activities and crisis-prevention communications.  The purpose would be to lessen the prospects for incidents and miscalculation that could lead to heightened competition or even conflict.

"In our view, and again, based on upon our own experience with arms control, we believe such an approach offers the best chance for success.  At the same time, we would not discourage or rule out efforts to decrease the level of militarization, especially involving those systems most likely to contribute to instability amidst crises.  Eventually, and as called for by President Bush's 1991 initiative, we would hope to see the level of conventional arms reaching the region greatly diminished and weapons of mass destruction eliminated.

"Let me close with one thought.  We live in an age when many of the world's regions, once ravaged by war, are now coming together.  We see this above all here in Europe, but we see it too in Asia and in Central and Latin America.  The results are obvious:  peace and security, prosperity, better quality of life.  Increasingly, the Middle East stands out, but not in the way that should make any of us proud.  Our challenge — our opportunity — is to begin the process of making the Middle East a region, not just in the geographic sense, but in the political, the economic, and, indeed, in the human sense as well.

"This gathering here today reflects the commitment and resources of those outside the region who want to assist in this effort.  The co-sponsors, the United States together with Russia, strongly encourage the parties in the region for whom this process offers real benefits, to engage promptly and fully.  This is a rare opportunity; do not let it pass by."7/

Excerpts from the comments made at the press conference

by the Co-Chairmen

On the same day, the United States Secretary of State, James A. Baker and the Minister for Foreign Affairs of the Russian Federation, Mr. Andrei V. Kozyrev, held a joint press conference in the course of which they  made  the  following  comments, inter alia:

Mr. James A. Baker

"Let me say a few words and then, perhaps Andrei would like to add to or subtract from what I'm going to say.  I think we had a good beginning this morning.  The interventions of the various ministers and representatives were on the whole, I felt, complete and moderate in their tone, spoke to the real issues for which we are gathered here which is to look at, consider and hopefully act upon some of the regional problems facing the Middle East as a region.  Our desire, of course, is to get agreement here with respect to the formation of working groups and to achieve some consensus if we can, later this afternoon and tomorrow respecting when these working groups might meet and where they might meet.  Having said that I have to say that I hope I'm speaking as well for my co-sponsor that we are disappointed, of course, that the Palestinian delegation chose not to attend.  The position of the co-sponsors with respect to this matter is that attendance today should have been pursuant to the formula agreed to and carried out in Madrid, and to the formula agreed to and represented in the terms of reference as reflected in the invitation that was extended both for the bilaterals and for this meeting.

"Let me say that I personally think there is merit to the argument that we here are dealing with issues that involve the region as a whole and that therefore consideration should be given to expanding the terms of reference in so far as they pertain to the question of Palestinian representation.  Over the course of the past several days and particularly last night and again this morning, we told the Palestinians in discussions with their representatives that we together would be supportive of representation by diaspora Palestinians in working groups where that representation was appropriate.

"And, it is the view of the United States — and again I hope the similar view of Russia — that that representation is appropriate with respect to working groups that were created to discuss, for instance, the question of refugees, that it would be appropriate in connection with working groups that would be considering economic development and that there might perhaps be other working groups where diaspora representation would be appropriate.

"That did not suffice to convince the Palestinians to appear today and for that we are regretful.  However, we have a good conference and there are many things that we can and will accomplish.  We believe that the Palestinians are making a mistake by not taking advantage of this opportunity.  It represents a real opportunity not unlike that represented by Madrid where they appeared; they made presentations, they were well received by the international community as a whole.  The same opportunity is represented here and we're sorry they are not here."8/

Mr. Andrei V. Kozyrev

"Let me add that in addition efforts should be made to show our willingness to welcome the Palestinian delegation and work within the framework of the Madrid formula.  This morning I called the head of the Palestinian delegation before the meeting was opened, Mr. Baker also took the telephone and also several other delegations participated in this phone call.  And, I wanted to just stress that here so that everybody understands clearly that indeed we really wanted to have full participation in this conference and what formula we should use for future negotiations.  I just want to say that the first portion of this conference was very successful.  There can be no other way since we really — under my chairmanship — Russia is doomed to be successful in all of this.  And also Mr. Baker will take the chair this afternoon.  I want you to follow very carefully what happens this afternoon."8/

Towards the end of the first day of the Organizational Meeting for Multilateral Negotiations on the Middle East, the following remarks were made by the Co-Chairmen:

Concluding statement by the Minister for Foreign Affairs

of the Russian Federation, Andrei V. Kozyrev*

"Ladies and Gentlemen, Distinguished Delegates,

"The plenary part of our meeting at the foreign-minister level is drawing to a close.  The heads of the delegations attending the Moscow meeting have taken the floor to set forth their views on the Middle East peace process in general and on its multilateral stage in particular.

"In elaborating the concept of a Middle East Peace Conference, its Co-Chairmen harboured no illusions regarding the possibility of swift success. We are fully aware now too that our journey has only just begun and that a great deal of complicated work lies ahead for us all.

"At the same time, the Madrid Conference, the bilateral talks initiated in its wake and the Organizational Meeting in Moscow opening today give grounds for optimism and lend force to our belief that a comprehensive Arab-Israeli settlement is possible and that no effort should be spared to attain that goal.

"In today's speeches by heads of delegations, a wide range of views were expressed on the peace process and the relationship between the bilateral and multilateral talks.  Although the parties to the conflict differ in terms of priorities, there appears to be consensus regarding the need to move on two planes if a basic normalization of the situation in the Middle East is to be achieved:  engaging in dialogue regarding both the issues on the agenda of the bilateral talks and the problems that affect the interests of practically all countries and peoples of the region and many States outside it.  We also had clear evidence today of the conviction of most delegations that the bilateral and multilateral processes, even when running simultaneously, will not only not prove mutually obstructive but will even be mutually enriching and speed up progress towards an ultimate settlement.

"In the light of experience in dealing with other acute regional conflicts, we take the view that progress will be achieved more readily in the forthcoming talks on a comprehensive Middle East settlement if we start with the least complex problems and then move on to address the most difficult issues.

"We are firmly convinced that the United Nations has a role to play in constructive moves to establish peace in the Middle East.  The heroic States of the Persian Gulf and the other countries that took action to oppose aggression against Kuwait know by more than mere hearsay of the usefulness of the United Nations.

"In spite of the presence of Mr. De Michelis, there are fewer delegations here today than had been expected.  While we regret this, the Co-Chairmen hope that those who were unable to attend today will join us in making arrangements for the multilateral talks in due course, hopefully in the very near future.  I wish to make special mention of the question of Palestinian participation.  We started out on the assumption that the peace process would serve the interests of the Palestinians, since it cannot but, in the long run, result in the attainment of their legitimate rights while at the same time providing reassurance for Israel on matters of understandable concern. The Co-Chairmen agree that adjustments to the Madrid formula in operation today may be made when the work of the different negotiating groups on specific region-wide problems, particularly that of refugees, gets under way.

"I hope that those present are aware of the particular satisfaction felt by the Russian delegation at the participation in today's meeting of representatives of the independent sovereign States of Ukraine, Kyrgyzstan and Azerbaijan.  I wish them most cordially welcome and hope that they will make a constructive contribution to the furtherance of the Middle East peace process.

"The heads of delegations who took the floor today had many helpful ideas to offer regarding practical arrangements for the multilateral talks.  They all merit the most careful consideration and study.  I now wish to call on my colleague, United States Secretary of State James Baker, to deliver his closing statement.

"Thank you for your attention."8/

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* Unofficial translation from Russian.

Remarks by the United States Secretary of State, James A. Baker

"As we approach the end of our first day, let me start my concluding remarks by saying quite simply that I am encouraged that his organizational meeting is taking place because I think that the launching of these multilateral talks is another important milestone in what I referred to earlier as the historic road that we began in Madrid.

"Many here have demonstrated real creativity and vision in the ideas that have been suggested here today and the comments that have been made here. It was heartening to hear some of my colleagues from the Middle East talk about the rich potential of regional cooperation.  And it is also heartening to hear of the readiness of many countries around this table from outside the region to pitch in and help realize that potential.

"It should be surprising to no one that we heard today of difficulties as well as possibilities, and that we spoke today candidly of problems as well as hopes.  It is obvious that enduring regional cooperation will not be possible without progress toward resolving core political disputes that are involved in the multilateral negotiations and many speakers today have made mention of that.  It is obvious that many of the questions discussed today, like arms control and regional security or water, are inherently complex subjects.

"But it is equally obvious to me, as I mentioned this morning, that systematic consideration of those kinds of issues can be a complement and can be a catalyst for the bilateral talks and for progress in the bilateral talks, and, of course, the bilateral talks remain the heart of the peacemaking process.

"We regret that three of the regional parties invited to attend — Syria, Lebanon and the Palestinians — are not here today.  We continue to believe that these three parties could make a significant contribution to the work of these multilateral negotiations and we encourage them to participate as this process evolves.  At the same time, we believe this process can work to their benefit.

"Palestinians in particular, we think, have much to gain from such participation.  As Minister Kozyrev and I made clear earlier today, publicly and to the Palestinians, we would be supportive of Palestinian requests to include diaspora representatives in appropriate working groups — such as refugees and economic development — after the Moscow meeting.  However, the terms of reference for this meeting, as reflected in the original invitations, call for Palestinian representation based on the Madrid formula, and they should not be changed at the last minute if this entire process is to continue to have credibility with all of us.  We regret that the Palestinians are not here.  They have chosen not to come, and in my view they have once again passed up an important opportunity.

"We also regret that the United Nations, which was invited to attend, is not here.  We hope for full UN participation in the working groups as the process moves ahead.  UN specialized agencies could play an important role in supporting this process.

"Now, with the active participation of those here today and with the potential future involvement of others, I think, it is time to get to work. And I think that we have before us a reasonable framework for collective and constructive action.

· Tomorrow morning at ten o'clock, we will begin to discuss five initial working groups, working groups in arms control and regional security, economic development, water, environment, and refugees.

· These discussions will be followed this spring by a range of specific follow-up steps, from missions to the region to seminars and perhaps further meetings.

— The European Community has indicated its willingness to play a leading role in promoting regional economic development.

— Japan is considering a mission to the region to explore possibilities for environmental cooperation in the Gulf of Aqaba.  It has also made clear its readiness to help regional parties address some broader environmental challenges.

— The water group will be discussing timing, venue and possible agenda for a first seminar on regional water cooperation.

— I am pleased to confirm that the United States is prepared to host a seminar on arms control and regional security.

— The refugee group will consider practical ways of improving the lot of people throughout the region who have been displaced from their homes.  I am particularly pleased that Canada has indicated its readiness to play a leading role in promoting regional cooperation in this area.

· In addition, we think consideration should be given to forming  an ad hoc steering group.  The purposes of such a group would be to provide continuity, to monitor the efforts of the five initial working groups, as and when they are formed, and to consider the formation of additional groups.

"As we prepare for tomorrow's meeting, I think there are several things we should keep in mind:

· First, I think we ought to all remember, because we've all spoken about it up here, the opportunity created by these multilateral discussions.  They offer a real and valuable chance to address issues of major importance that do not lend themselves to discussion of the bilateral framework.

· Secondly, we should not forget the potential for the multilateral talks to help create a political environment in which the bilateral talks are more likely to accomplish what we all want in the areas of peace, territory and security.

· Third, we should take full advantage of the experience, the expertise and resources of others, both inside and outside the region.

· Fourth, while keeping our horizons and ambitions broad, it might be best if we were to focus initially on some small, practical steps that provide a foundation on which we can build.

· Fifth, we should recognize that consensus among all the parties directly concerned is the only sensible way to move ahead in the working groups.  Peace is not going to be imposed from the outside; neither can various forms of regional cooperation be imposed. Progress on regional issues requires effort and commitment particularly by regional parties themselves.

"No one should expect immediate breakthroughs toward multilateral cooperation in the Middle East.  But neither should we neglect the possibilities for cooperation which exist at this unique moment in the history of the region, and at this unique moment in the history of the world.

"Look around you, ladies and gentlemen, at the parties gathered at this table.  Who would have imagined 50 years ago that the nations of Europe, many of whom were for centuries the fiercest of enemies, would find lasting common purpose in a vibrant Economic Community?  And who would have imagined even five years ago that the United States would launch a new partnership with a democratizing Russia?  Who really knows what kinds of cooperation, however improbable it might seem today, might be possible in the Middle East over the rest of this decade?

"So, in closing, let me again thank Andrei Kozyrev and his Government for their gracious hospitality and for undertaking the logistical difficulties of putting on a conference such as this on short notice.  And, my friends, let us all press ahead with renewed determination and renewed energy to make multilateral cooperation a reality in a region which has already known far more than its share of conflict."7/

Official statement by the Palestinian delegation,

Moscow, 29 January 1992

On 29 January 1992, the following statement was released by the Embassy of the State of Palestine in Moscow:*

"OFFICIAL STATEMENT BY THE PALESTINIAN DELEGATION

"The Palestinian delegation, present in Moscow at the multilateral meeting on the Middle East, regards the statement by the United States of America and Russia (Co-Chairmen) expressing support for a broadening of Palestinian participation in the work of the conference as a positive step in the right direction.

"In this connection, the Palestinian delegation has addressed a note to the Co-Chairmen of the conference stressing its belief in the importance for participation in the work of all committees at the next stage of the talks of guaranteed overall representation of the members of the delegation – from the occupied territories, the diaspora and Jerusalem.

"The Palestinian delegation greatly appreciates the efforts of its Arab brothers, both those present at the meetings of the conference and those absent, in support of the Palestinian position, their proposal for a separate discussion of the question of Jerusalem and also their conviction that the multilateral meeting should, in the end, pave the way for bilateral talks with a view to securing Arab and Palestinian rights, since this is a basic prerequisite for any peace process in the region.

"We hope that coordination of the efforts of the Arab countries will lead to more constructive results and to the development of general cooperation at subsequent stages of the talks.

"We also greatly appreciate the speeches by the overwhelming majority of participants in the conference expressing staunch support for the position of the Palestinian delegation.

                                             "Moscow, 29 January 1992" 9/

____________________

* Unofficial translation from Russian.

*    *    *

Notes

1. Foreign  Broadcast  Information  Service,  Daily  Report:  Near  East  and  South  Asia,  No.  FBIS-NES-92-007, 10 January 1992, pp. 13-14.

2. As per the text reproduced in Al-Fajr, dated 13 January 1992.

3. As per the text provided on 21 January 1992 by the Permanent Observer Mission of Palestine to the United Nations.

4. Department of Public Information, daily press briefing notes, 20 January 1992, p. 2.

5. The Washington Post, 21 January 1992.

6. Foreign  Broadcast  Information Service,  Daily  Report:  Near  East  and  South  Asia,  No.  FBIS-NES-92-015, 23 January 1992, p. 35.

7. Text of the statement distributed during the meeting held on 28 January 1992.

8. United States Department of State, Office of the Assistant Secretary/Spokesman, Press availability by US Secretary of State James A. Baker, III and Russian Foreign Minister Andrei Kozyrev, Dom Soyuzov (House of Unions), Moscow, Tuesday, January 28, 1992.

9. Text of the statement distributed during the press conference organized on 29 January 1992 by the Palestinian delegation.  Palestine Liberation Organization, Embassy of the State of Palestine in the USSR, Moscow, 29 January 1992.